The  Crisis 


IN 


Public  Education 

in  Illinois 


CENTRAL  CIRCULATION  BOOKSTACKS 

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The  Crisis 

in 

Public  Education 

in  Illinois 


ISSUED  BY  THE 

Legislative  Publicity  Committee 

OF  THE 

Illinois  State  Teachers'  Association 


Carleton  W.  Washburne,  Chair ma)i, 
Superintendent  of  Schools,  Winnetka,  111. 

W.  W.  Lewton, 

Superintendent  of  Schools,  Cicero,  111. 
President  City  Superintendents  Association 

J.  O.  Engleman, 

Superintendent  of  Schools,  Decatur,  111. 
Chairman  Legislative  Committee,  I.  S.  T.  A. 


MARCH,  1921 


The  Committee  issuing  this 
booklet  wishes  to  express  its 
heartfelt  thanks  to  Dr.  B.  R. 
Buckingham,  Director  of  the 
Bureau  of  Educational  Re- 
search at  the  University  of 
Illinois,  for  his  invaluable  aid 
in  gathering  statistics  for  this 
report. 


r.   .  LIBRAHY 

^  /1»i  OF  THE 

""/  Mg         HNIVERSITY  of  ILLINOIS 


Illinois  schools  are  running  behind 
515,000,000  a  year. 

160,000  children  are  being  taught  in 
unsuitable  class  rooms  and  basements. 

Three  out  of  four  teachers  are  under- 
trained. 

Almost  all  teachers  are  underpaid. 

The  only  way  to  prevent  this  situation 
from  becoming  worse  is  to  increase  the 
State  school  fund  from  $6,000,000  to 
$20,000,000  immediately. 

■^-      This  increase  is  less  than  that  which 
■   California,   New  York,   Ohio  and  other 
states  have  given. 

^      Illinois   now   is   2nd    in  wealth — 24th 
in  educational  rank  and  in  support  of 
^  its  schools. 

^      Normal  schools,  for  want  of  support, 
are  losing  their  faculties. 

Normal  school  salaries  have  increased 
_^  15  to  20%  since  1913,  while  living  costs 
^  have  increased  149%  and  wages  of  labor 
Q^^ave  risen  100  to  150%. 

^  Immediate  help  for  public  schools  and 
-"  normal  schools  is  imperative  if  they  are 
-  to  survive. 


1 0725^ 


Don't  Block  Them 


Courtesy  of  Mr.  Harry  Murphy,  and  the  Herald-Examiner.  ChicaRO. 


THE  SITUATION  OF  PUBLIC 
EDUCATION  IN  ILLINOIS 

Summary 

The  safety  and  \cry  life  of  the  state  depend  on 
an  inteUigent  body  of  voters  and  upon  the  ability 
and  good  citizenship  of  the  people. 

Good  public  schools  are  our  only  means  of  secur- 
ing future  intelligent  voters  and  good  citizens. 
Public  schools  cannot  function  without  funds. 
While  costs  have  increased  at  least  100%  in  four 
years,  school  funds  have  increased  33%.  Schools 
are  now  plunging  into  debt  for  running  expenses 
alone  at  the  rate  of  some  $15,000,000  per  year. 
And  education  is  not  being  carried  on  effectively. 
Three-fourths  of  the  schools  of  the  state  are  using 
undertrained  teachers,  15,400  children  are  being 
taught  in  basements,  100,000  children  are  being 
taught  in  rooms  not  suited  for  school  purposes, 
and  over  13,000  children  are  being  taught  in  rooms 
actually  condemned  as  unfit  for  use. 

This  condition  is  not  improving.  It  is  not  even 
standing  still.  It  is  rapidly  becoming  worse.  An 
increase  in  the  state  distributive  fund  sufftcient  to 
prevent  the  schools  from  going  further  into  debt  is 
the  least  anyone  dares  to  ask.  This  means  an 
increase  from  the  present  86,000,000  fund  to  a 
820,000,000  fund— the  difYerence,  814,000,000,  is 
even  less  than  the  amount  by  which  the  schools 
are  running  behind  in  spite  of  all  makeshifts.  All 
public  educational  bodies  in  the  state  are  united  in 
their  demand  for  a  820,000,000  distributive  fund 
for  the  schools. 

Illinois,  ranking  second  in  the  Union  in  wealth, 
is  24th  in  educational  rank  and  in  state  support  of 
education.  California  has  increased  its  State 
appropriation  to  the  schools  from  86,500,000  to 
814,500,000  and  its  county  appropriations  an 
equal  amount;  Xcw  York  has  increased  its  State 
appropriation    from    812,000,000    to    $32,500,000; 


Ohio  from  S4,000,000  to  $19,000,000.     To  save  its 
schools   Illinois  can   and   must  increase  its  State      j 
fund  from  $6,000,000  to  $20,000,000.  \ 


o  o 
o  o 
o  o 
©  o 

•^  o  *» 
i  ^   ^' 

£  <^  S 
•t-  *»  .2 

II 


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o  « 


^S 


Fig.  1 


Certain  districts  in  Illinois  are  penalized  for 
having  their  high  schools  and  elementary  schools 
under  the  same  Board  of  Education.  These  dis- 
tricts are  only  allowed  to  tax  themselves  locally 
57%  as  much  for  their  schools  as  the  rest  of  the 
State  may  tax  itself.  Chicago  is  still  further  lim- 
ited, its  school  tax  being  limited  to  39%  of  that  of 
most  school  districts.  The  State  should  give  these 
districts  a  square  deal  by  making  their  school  tax- 
ing power  equal  to  that  of  all  other  districts. 

During  the  last  seven  years,  living  costs  have 
risen  149%;  wages  of  labor  and  factory  workers 
have  risen  100%  to  150%;  teachers'  salaries  have 
risen  75%.  Normal  school  instructors'  salaries 
have  risen  only  15%.  Over  half  of  the  normal 
school  instructors  have  left  the  normal  schools 
during  the  last  two  years.  The  normal  schools 
are  asking  a  50%  salary  increase  for  their  facul- 
ties, and  enough  money  for  buildings  and  equip- 
ment to  make  it  possible  for  them  to  function. 
When  it  is  realized  that  upon  the  quality  of  work 


6 


done  by  these  normal  schools  depends  the  educa- 
tion of  the  children  of  the  State,  can  Illinois  afford 
to  refuse  their  requests? 


Per  Cent. 
250 


210 
200 
190 
180 
170 
160 
150 
140 
130 
120 
110 
100 


Fig.  2 


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Year,  1913        1914 


1915 


1917 


1918 


A  graph  to  illustrate  the  table  of  indices  of  teachers'  salaries  and  cost 
of  living. 

Dotted  line  A  represents  teachers'  salaries. 

Solid  line  B  represents  cost  of  living. 

Broken  line  C  represents  Normal  School  salaries. 

D  represents  common  laborers  salaries. 

We  start  with  both  salaries  at  100  in  1913  because  it  is  now  supposed 
that  the  year  1913  was  a  normal  year  unaffected  by  the  war  or  other 
abnormal  causes  or  conditions.  But  even  then  it  was  generally  admitted 
that  teachers'  salaries  were  too  low. 

Legislation  necessary  to  prevent  these  situations 
in  Illinois  from  becoming  worse  is  being  recom- 
mended in  Springfield  by  the  State  School  Board 
Association,  City  Superintendents'  Association  and 
State  Teachers'  Association. 


If  the  facts  presented  in  this  booklet  can  be 
placed  squarely  before  all  the  people  of  Illinois, 
there  is  no  question  as  to  the  wholehearted  sup- 
port they  will  give  to  a  program  that  will  enable 
their  children  to  receive  an  adequate  education. 


I— THE  PUBLIC  SCHOOLS 
1 — How  Illinois  Schools  are  Financed 

The  schools  of  Illinois  receive  their  main  income 
from  two  sources.  About  nine-tenths  of  it  comes 
from  local  taxation  in  the  district;  about  one-tenth 
is  appropriated  by  the  State  Legislature. 

Local  taxation  for  schools  is  limited  by  law  to 
S2.00  on  each  SI 00  of  assessed  valuation.  But 
by  referendum  vote  the  people  of  a  district  can 
increase  this  to  S2.67.  Beyond  this  no  district 
is  allowed  to  tax  itself,  no  matter  how  badly  it 
needs  more  money. 

If  the  high  school  is  under  a  separate  Board  of 
Education — that  is,  if  it  is  a  Community  or  Town- 
ship High  School — the  High  School  Board  may 
levy  an  additional  tax  up  to  S2.00  on  each  SlOO 
of  assessed  valuation.  But  if  a  school  system 
wishes  to  have  unit  control  of  high  school  and 
elementary  schools,  it  must  support  both  on  the 
same  amount  of  money  as  is  allowed  to  other 
districts  that  support  elementary  schools  only. 
Of  course  this  is  unfair. 

Note:  (Chicago  is  still  further  limited  in  its 
local  taxation.     See  page  22  of  this  report.) 

The  State's  share  in  supporting  the  schools  con- 
sists of  distributing  $6,000,000  each  year  among 
all  the  districts  of  the  State  on  a  basis  of  the  num- 
ber of  children  under  21  years  of  age  in  each  dis- 
trict. This  distributive  fund  would  tend  to 
equalize  educational  opportunities  through  the 
State  if  it  were  large  enough  to  count  materially. 
It  takes  the  money  wherever  it  is  and  gives 
it  to  the  children  wherever  they  are.  It  is 
raised  by  the  State  as  part  of  the  State  tax.  The 
State  tax  is  at  present  S.40  on  each  SlOO  of  assessed 
valuation  for  all  purposes.  Only  $.143^^  of  this 
S.40  is  used  for  the  distributive  fund.  An  increase 
of  the  distributive  fund  from  S6,000,000  to  S20,- 
000,000  may  involve  an  increase  of  about  34  cents 
on  each  SlOO  of  assessed  valuation  in  the  State 
tax  rate. 

It  should  be  clearly  understood  that  "assessed 
valuation"  does  not  mean  real  value  for  either 
local  or  state  taxation.  It  is  never  more  than 
half  of  the  real  value,  usually  not  more  than  a 
fourth,  and  frccjuently  a  tenth  or  less  of  the  real 
\alue  of  the  property.  The  assessed  valuation  on 
a  piece  of  property  worth  S10,000  would  therefore 
range  from  below  SIOOO  up  to  about  S2500.  A 
34  cent  tax  increase  against  these  amounts  would 
mean  that  the  owner  would  pay  S3. 40  to  S8.50 
per  year  more  in  taxes — 30  to  70  cents  a  month. 
Is  the  education  of  children  in  Illinois  worth  that 
much? 

This  increase  in  tax  rate  will  not  be  necessary, 
however,  if  some  of  the  property  that  is  now  entirely 

8 


escaping  taxation  can  be  put  on  the  tax  books 
In  this  connection  see  figure  12  on  page  19  of  this 
booklet. 


LOCAL   TAXES 


STATE  Yo 


Fig.  3 
Where  our  Elementary  Schools  get  their  money. 

2 — The  Financial  Needs  of  Our  Schools 

The  Bureau  of  Educational  Research  of  the  Uni- 
versity of  Illinois,  under  the  direction  of  Dr.  B.  R. 
Buckingham,  has  collected  data  from  over  half  of 
the  city  and  village  schools  of  the  state.  The 
data  were  obtained  in  January  and  February, 
1921,  and  are  therefore  strictly  up-to-date.  They 
show  the  following  facts: 

Our  schools  are  restricting  the  amount  and 
quality  of  their  public  service. 

"In  the  questionnaire  submitted  to  superintend- 
ents, data  were  secured  merely  on  the  question 
whether  or  not  curtailments  due  to  financial  short- 
age had  been  made.  'Curtailments'  was  rigidlv 
defined  to  mean  essentially  a  retrograde  movement; 
an  abandonment  of  some  function  or  organization 
which  had  already  been  in  existence  and  which 
would  not  have  been  abandoned  except  because 
of  stringent  financial  conditions.  In  1919,  60 
cities  reporting  to  us  indicated  that  they  had 
already  begun  to  curtail  their  service.  New  cur- 
tailments in  1920  were  reported  by  65  cities.  In 
1921  the  number  had  risen  to  83.  It  is  our 
understanding  that  the  65  curtailments  of  1920 
and  the  83  of  1921  were  in  addition  to  the  60 
reported  for  1919.  This  may  have  meant  addi- 
tional cities  in  which  reductions  in  service  were 
put  into  effect,  or  it  may  have  meant  additional 
curtailments  in  the  same  cities.  At  any  rate  it  is 
clear  that  the  number  of  cities  is  increasing  in 
which  educational  opportunities  are  being  dimin- 
ished. As  applied  to  the  schools,  this  may  mean 
the  dismissal  of  a  supervisor  who  has  made  the 
music  or  art  a  delight,  or  of  a  supervisor  who  has 
guided  the  primary  teachers  in  their  difficult  task. 
Perhaps  the  super\'isor  has  resigned.  At  any  rate, 
an  opportunity  for  dispensing  with  such  service 
may  be  seized.  Special  courses  that  have  proved 
helpful,  kindergarten,  free  lunches,  Americaniza- 


tion — any  one  of  a  number  of  things  which  make 
the  schools  more  than  ordinary  social  assets — 
these  are  the  sort  of  things  which  the  city  systems 
with  their  backs  to  the  wall  have  been  obliged  to 
deny  themselves. 

Our  Children  are  Being  Taught  in  Unfit 
Class  Rooms 

"The  extent  to  which  emergency  use  is  made  of 
rooms  is  a  partial  index  of  the  prevalence  of  unde- 
sirable conditions.  The  cities  contributing  to 
this  report  showed  that  258  basement  rooms  were 
in  use  and  that  183  other  rooms  were  in  use  which 
were  not  satisfactory  for  classroom  purposes.  (See 
illustrations,  pages  15,  16  and  17.)  In  addition  to 
these,  591  rooms  were  in  use  in  temporary  or  porta- 
ble buildings  and  123  rooms  which  were  not 
designed  for  school  use.  Thus  a  total  of  1155 
rooms  were  being  pressed  into  service  which  in 
one  way  or  another  were  unsuited  or  undesirable 
for  school  purposes.  If  to  these  were  added  the 
931  rooms  in  which  two  classes  are  reciting  on 
double-session  plan,  we  have  a  grand  total  of 
2086  as  the  number  of  units  which  ought  to  be 
replaced  in  these  cities.  Estimating  40  pupils  to 
a  classroom,  we  may  infer  that  upwards  of  80,000 
children  are  being  brought  under  classroom  con- 
ditions which  place  them  at  a  disadvantage  in 
their  school  work. 

"In  addition  to  these  conditions,  it  is  reported 
that  23  buildings  and  41  additional  rooms  are 
being  used  where  school  houses  have  actually  been 
condemned  as  unfit  for  use.  The  number  of  pupils 
reciting  in  these  buildings  and  rooms  is  reported 
as  6512."  Since  these  figures  and  those  in  the 
preceding  paragraph  are  from  only  half  of  the 
State,  they  should  be  doubled  to  show  the  state- 
wide emergency.  This  means  that  at  least 
160,000  Illinois  children  are  in  unsuitable  and 
undesirable  schoolrooms. 

Our  Teachers  are  Being  Underpaid 

Long  before  the  War  teachers'  salaries  were 
recognized  as  being  far  below  what  they  should 
be.  During  and  since  the  War  teachers'  salaries 
have  risen,  but  the  cost  of  living  has  risen  much 
faster  (see  Figure  2).  Consequently,  teachers 
are  now  receiving  even  lower  salaries  in  purchasing 
power  than  they  were  in  pre-war  days.  They 
receive  far  less  after  four  \ears  in  high  school  and 
two  years  in  normal  school  (when  we  are  fortunate 
enough  to  get  trained  teachers)  than  does  a  car- 
penter, electrician,  mason,  or  other  artisan  and 
actually  less  than  common  labor,  untrained,  un- 
skilled and  with  no  responsibility  for  the  welfare 
of  the  future  citizens  of  the  state. 

10 


If  we  pay  our  teachers  poorly,  we  will  get  poor 
teachers.  Superior  men  and  women  will  tend  to 
drift  into  other  better  pa^ung  fields  and  are  doing 
so  to  an  alarming  extent.  Already  only  one-fourth 
of  the  teachers  in  Illinois  have  had  the  two  years 
of  normal  school  training  that  are  recognized  as 
the  minimum  training  a  teacher  should  have.  If 
we  think  too  little  of  the  education  of  our  children  to 
pay  for  it,  we  don't  deserve  the  services  of  the  type 
of  men  and  women  who  can  give  them  education. 

Our  Schools  are  Going  Hopelessly  into  Debt 

"By  means  of  anticipation  warrants  the  cities 
have  spent  the  proceeds  of  taxation  before  the 
money  was  actually  at  their  disposal.  Teachers' 
warrants  ha\e  also  been  issued.  These  warrants 
are  loans  constituting  a  lien  on  the  receipts  Avhich 
may  subsequently  accrue  to  the  school  district. 

"One  hundred  six  cities  reported  a  total  of  antici- 
pation and  teachers'  warrants  as  follows: 

1919 82,530,681 

1920 3,472,344 

1921 5,340,269 

It  will  be  seen  from  these  figures  that  the  cities 
were  heavily  anticipating  their  receipts  in  1919 
and  that  they  are  doing  so  still  more  heavily  this 
year.  In  fact,  for  the  106  cities  reporting  on  this 
item  for  three  years,  the  anticipation  and  teachers' 
warrants  have  more  than  doubled. 

"The  cities  involved  are  only  about  one-fourth 
of  the  total  number  to  whom  we  applied  for  infor- 
mation. If  the  remaining  three-fourths  of  the 
cities  have  been  anticipating  their  incomes  to  the 
same  extent,  we  have  an  estimated  amount  of 
about  820,000.000.  This  would  represent  the  con- 
ditions for  all  the  cities  and  villages  in  Illinois 
having  six  or  more  teachers." 

Increases  in  School  DEBT  (not  counting  bond 
issues)  of  106  Illinois  cities.  If  the  .^00  cities  not 
reporting  are  at  all  like  these,  the  totals  for  the  state 
outside  of  Chicago  are  four  times  those  shown  in 
this  chart. 

It  will  be  noticed  that  even  with  a  520.000,000 
distributive  fund  the  debt  increases  to  some  ex- 
tent; without  this  increase  of  distributive  funtl  the 
debt  will  increase  alarmingly  next  year. 


mmmm 

$8,122,914 
IF  DISTRIBUTIVE. 
FUND  REMAINS 
AT  $6,000,000 


$5,340,269 


$5,472,344 


$2,530,681 


1920 


1922 


Fig.  4 
11 


This  does  not,  however,  include  Chicago. 
Chicago's  deficit  has  been  as  follows: 

1919 S  7,197,907 

1920 9,541,216 

1921 13,091,000 

The  total  deficit  of  the  schools  of  Illinois  is, 
therefore,  $33,000,000,  exclusive  of  bonded  indebt- 
edness. 

The  percentage  of  increase  in  Chicago's  deficit 
was  33%  from  1919  to  1920,  37%  from  1920  to 
1921.  In  the  rest  of  the  cities  of  Illinois  the  in- 
crease in  indebtedness  was  37%  from  1919  to  1920, 
and  was  54%  from  1920  to  1921. 

If  the  deficit  increases  at  the  same  rate  for 
1921-1922  as  during  the  past  year,  the  increase 
in  the  debt  of  the  schools  (outside  of  Chicago)  will 
be  810,800,000.  The  deficit  of  the  Chicago  schools 
will  increase,  according  to  the  auditor's  estimate, 
$4,800,000.  The  total  increase  in  indebtedness  of 
the  schools  of  Illinois  will,  therefore,  be  815,600,000 
next  year.  The  only  hope  of  stemming  this 
increase  is  to  get  814,000,000  a  year  of  increased 
income.  It  is  the  smallest  amount  that  can  even 
be  considered.  It  does  not  enable  the  schools  to 
pay  the  $33,000,000  they  already  owe.  It  does 
not  enable  the  schools  to  increase  teachers'  salaries 
as  they  should.  It  does  not  provide  proper  class 
rooms  for  the  school  children  of  Illinois.  It  barely 
prevents  the  schools  from  having  to  make  all  of 
these  conditions  worse.     See  Figures  4  and  5. 


Increase  in  deficit  of  the  Chicago  Schools.  There 
was  no  deficit  from  1911  to  1915.  Deficits  from 
1921  to  1923  are  estimated  by  the  auditor. 


S 13091 000 


M7Q9I000 

IF  DISTRIBUIIVE 

f  UNO  BE  MAINS 

AS  IT  IS 


523941.000 

irDSTRIBUnVE 

FUND  REMAINS 

AS  IT  IS 

/ 


S7.I97.907 

$3030  297 

S  245  085 


5668477 


1019  1020 

Fig.  5 


1021 


To  quote  furtlior  from  the  Buckingham  report: 
"As  a  matter  of  fact  the  size  of  the  anticipation 
warrants  is  only  to  be  judged  in  connection  with 
the  expenditures  for  school  purposes.  Table  VIII 
shows  the  estimated  expenditures  for  1921  for 
purposes  other  than  buildings  and  sites  and  the 
estimated  anticipation  and  teachers'  warrants  for 
ten  cities  taken  entirely  at  random. 

12 


Table  VIII.     Relation  between  Expenditures 

and  Anticipation  and  Teachers'  Warrants 

for  Ten  Cities  Taken  at  Random 

Expenditures 

Exclusive  of  Anticipation 

Buildings  and  Teachers' 

City                             and  Sites  Warrants 

Quincy $342,390  $175,000 

Martinsville 17,000  7,010 

Mattoon 85,000  36,000 

Champaign 174,436  24,000 

Urbana 120.828  95,000 

Canton 91,000  75,000 

Rock  Island 325,000  200,000 

Kewanee 129,450  95,000 

Knoxville 25,000  6,000 

Carbondale 43,092  33,095 

Total Sl.353,194  $746,105 

"Anticipation  and  teachers'  warrants  mean 
money  borrowed  on  next  year's  taxes.  Notice 
that  the  amount  so  borrowed  is  more  than 
half  of  the  operating  expenses  of  the  schools. 
One  does  not  need  to  point  out  that  any  enter- 
prise, educational  or  otherwise,  which  is  paying 
half  its  running  cost  by  anticipating  its  receipts  is 
financially  on  the  rocks." 


3 — Why  the  Schools  are  in  Such  a 
Desperate  Situation 

There  are  three  important  reasons  for  the  heavy 
debt  of  the  schools:  (1)  Enrollment  has  increased; 
(2)  the  State  and  communities  have  made  bigger 
demands;  and  (3)  cost  of  educating  a  child  has 
risen  much  faster  than  the  income  of  the  schools. 

The  increase  in  enrollment  has  been  at  the  rate 
of  about  5,000  children  a  year. 

The  new  demands  upon  the  schools  include 
Americanization  work  and  continuation  schools. 

Continuation  schools  are  required  by  law.  They 
are  schools  for  children  above  the  age  of  fourteen 
who  are  working.  These  children  now  must 
attend  school  part  time  and  must  receive  instruc- 
tion of  a  kind  and  at  a  time  that  will  fit  their 
needs.  The  law  is  an  excellent  one,  but  no  funds 
are  given  to  the  schools  to  carry  it  out. 

The  outstanding  cause  of  the  schools'  plight, 
however,  is  the  increased  per  capita  cost  of  edu- 
cating children. 

The  report  of  the  Bureau  of  Educational  Re- 
search combined  with  that  of  the  State  Superin- 
tendents of  Public  Instruction  gives  the  following 
table  of  per  capita  costs  of  education  in  Illinois: 

13 


*45 


S47 


*49 


J53 


^84 


191; 


1919 
Fig.  6 


The  great  increase  in  1921  is  due  largely  to  a 
material  increase  in  teachers'  salaries  (see  Figure 
2,  page  6),  partly  to  the  marked  increase  in  cost 
of  all  school  supplies  and  books,  partly  to  the  fact 
that  the  schools  had  been  holding  down  expenses 
desperately  as  long  as  they  could,  and  finally  were 
unable  to  go  without  supplies,  equipment,  repairs 
and  buildings  any  longer,  and  partly  to  the  fact 
that  the  partial  financial  relief  given  by  the  Hicks 
bill  and  bv  the  increase  of  the  distributive  fund 
from  84,000,000  to  86,000,000  two  years  ago, 
reached  the  schools  for  the  first  time  in  the  spring 
of  1920. 

The  increase  in  per  capita  cost  of  education  is 
shown  in  Figure  6. 

It  is  perfectly  evident  that  if  the  cities  must 
pay  884.00  per  pupil  this  year  against  a  former 
cost  of  less  than  849.00,  there  must  be  a  sharp 
increase  in  re\enue  to  meet  the  added  expense. 
When  to  the  fact  that  each  child  costs  over  835.00 
more  in  1921  than  two  years  ago  is  added  the  fact 
that  the  enrollment  is  increasing  at  the  rate  of 
something  like  5,000  pupils  a  year,  we  have  a 
situation  which  will  place  the  responsibility  for 
the  continuance  of  the  schools  at  their  present 
level  of  efficiency  squarely  up  to  the  taxpayers 
of  the  state. 


4 — Why  Relief  Should  Come  from  the 
State,  Rather  than  Local  Districts 

Just  south  of  Chicago  there  are  two  districts 
side  by  side — District  111,  Stickney  Township, 
and  District  103,  Lyons.  In  one  (District  HI) 
there  are  railroad  yards,  high  property  values, 
and  few  children.  In  the  other  (Lyons)  there 
are  workers'  cottages,  low  property  values,  and 
manv  children.  The  assessed  valuation  of  District 
111  'is  81,149,912,  and  there  are  only  51  children 
enrolled  in  the  school.  The  assessed  valuation  of 
Lyons  is  8890,530,  and  there  arc  729  children  in 
the  schools.  The  lax  rate  in  District  111  is  27 
cents,  and  they  have  plenty  of  money.  The  tax 
rate  in  Lyons  is  82.67,  and  they  have  not  enough 
to   run    their   schools.     In    District    111    there   is 

14 


822,548  of  taxed  property  for  each  child.  Irt 
Lyons  there  is  $1,222 — just  one-eighteenth  as 
much,     (See  Figure  7.) 


Fig.  7 
Amount  of  wealth  per  child  in  two  adjoining  districts. 

In  two  other  adjoining  districts,  in  a  different 
part  of  the  State,  the  difference  is  even  greater, 
being  S3, 800  per  child  in  one  district  and  $85,000 
per  child  in  the  neighboring  one — 24  times  as  much. 

The  principle  of  a  greater  degree  of  State  support 
of  the  schools  is  that  we  tax  the  wealth  of  the 
State  wherever  it  is  and  use  the  money  to 
educate  the  children  wherever  they  are. 

The  inequalities  of  district  taxation  lead  to 
dangerous  situations.  Look,  for  instance,  at  the 
photographs  (Figures  8  and  9)  of  one  of  the  schools 
in  a  mining  district  in  ALicoupin  County.  We  are 
counting  upon   the  public  schools  to  make  good 


This  is  an  old  shack  where  they  have  two  rooms,  one  over  the  other 
each  containing  68  pupiils.  The  lighting,  heating,  seating,  ventilation, 
safety  from  fire  and  several  other  pupil  welfare  safeguards  and  laws  are 
absolutely  disregarded.  Xotice  the  artistic  entrance  and  stairway  and 
fire-escape  combined. 

This  district  is  a  year  or  more  behind  on  teachers'  orders.  A  bank  that 
had  been  cashing  these  orders  recently  brought  suit  against  tlie  district  and 
obtained  a  judgment.  Therefore,  the  people  in  this  elementary  district 
will  pay  S6.26  on  the  SlOO  in  school  taxes  alone  this  spring — S2.66  for  the 
elementary  school  as  the  regular  rate,  S2.00  for  the  community  high 
school,  and  SI. 60  on  account  of  the  judgment  by  the  court. 

15 


American  citizens  out  of  the  children  of  our  im- 
migrants. These  children  will  vote  and  help  to 
make  the  laws  of  Illinois  fifteen  years  hence. 
Can  they  receive  the  type  of  training  that  will  fit 
them  for  this  in  such  schools  as  are  shown  in  the 
accompanying  photographs? 

The  situation  is  well  expressed  in  the  following 
letter  from  a  big,  warm-hearted  Irish  coal  miner, 
who  is  on  the  Board  of  Education  in  a  mining 
tow^n.  The  letter  is  to  Judge  T.  A.  Snell  of  Car- 
linville,  a  member  of  the  Illinois  Assembly: 


FiK.  9 

Here  is  one  room  in  the  old  shack.  Notice  the  up-to-date,  scientific 
heating  and  ventilatinK  systems.  Also  notice  the  electric  lights.  The 
lightinc  is  so  poor  that  on  dark  days  the  lamps  must  be  turned  on. 

On  cold  days  the  old  stove  must  be  kept  red  hot  to  keep  the  room  warm. 
You  may  be  sure  that  the  little  fellows  within  two  or  three  feet  of  it  keep 
warm  enough. 


SawverviUc,  111.,  Feb.  6,  1921. 
Mr.  T.  A.  Snell. 

Carlin\ille,  111. 
Dear  Judge: 

I  am  writing  you  in  behalf  of  the  schools  in  this 
end  of  the  County  (Macoupin)  w^hich,  to  say  the 
least,  are  in  a  deplorable  condition,  and  unless  the 
State  Distributive  Fund  is  increased  sufficient  to 
help  us  I  can  see  no  hope  for  the  schools  in  this 
community.  We  have  children  in  basements  that 
are  injurious  to  their  health  and  to  the  health  of 
the  teachers.  We  ha\e  children  stuck  in  old  build- 
ings that  have  been  condemned  by  the  State  Fire 
Marshal  and  which  violate  the  state  sanitary  laws 
in  every  particular.  The  truancy  laws  are  a  farce 
as  we  can't  enforce  them  for  want  of  room  and  you 
would  not  know  that  school  was  in  session,  judg- 
ing by  the  children  that  are  roaming  the  street 
every  day. 

16 


Now  we  have  to  start  the  continuous  school 
provided  for  in  the  last  Legislature  which  spells 
disaster  for  the  district  school.  You  know  the 
fight  I  have  made  for  more  taxes  during  the  last 
eight  years  and  you  are  acquainted  with  the  con- 
ditions and  I  know  that  will  appeal  to  your  Amer- 
icanism and,  regardless  of  consequences,  you  will 
be  with  us. 

I  keenly  appreciate  the  fact  that  anything  that 
makes  more  taxes  is  very  unpopular  with  the 
electorate  at  this  time,  but  why  make  such  fine 
laws  for  the  governing  of  our  schools  and  then 
make  their  execution  impossible,  and  that  is  the 
position  we  occupy  at  present.  You  know  also 
that  95%  of  the  children  in  this  coinnninity  are 


Fig.  10 

Here  are  77  pupils  packed   into  the  basement  of  the  Greek  Church   in 
District  133,  and  a  few  are  absent. 


either  foreigners  or  of  foreign  extraction;  children 
of  men  who  left  their  mother  country,  the  avowed 
enemy  of  all  constituted  authority  and  are  still 
fed  on  the  same  dope  by  the  radical  papers  printed 
in  their  different  languages  and  which  enjoy  such 
a  large  circulation  in  this  country.  You  can  see 
by  the  daily  press  that  95%  of  the  violators  of  the 
18th  Amendment  are  foreigners  and  it  means  that 
the  leopard  cannot  change  his  spots.  Therefore, 
it  behooves  us  to  see  that  the  children  of  these 
people  get  an  education  sufificient  to  enable  them 
to  cope  with  the  other  children  of  the  community 
in  which  they  reside,  and  it  is  a  man's  job. 

I  stand  ready  to  do  anything  that  I  am  capable 
of  doing  to  assist  you.  If  there  is  anything  I  can 
do,  command  me  and  I  will  be  there,  regardless  of 
expenses  or  consequences. 

17 


Wishing  you  every  success  for  the  Twenty  Mil- 
lion Dollar  Drive  and  consequently  improvement 
in  our  public  school  situation,  I  remain, 
Yours  very  truly, 

A  photograph  of  one  of  the  basement  class  rooms 
n  the  district  here  referred  to  is  shown  in  Figure  10. 

We  do  not  have  to  go  to  the  mining  districts  to 
get  such  conditions.  Just  outside  of  Chicago  is 
the  Montrose  School,  in  District  863/2-  ^^  one 
room  there  are  116  pupils,  sitting  two  in  a  seat 
and  all  around  the  walls.  The  district  is  two 
years  behind  in  the  payment  of  its  teachers' 
orders.  This  year's  teachers  will  be  paid  in  1923 
or  1924.  Banks  refuse  to  accept  the  teachers' 
warrants.  No  wonder  the  sixth  grade  in  that 
school  has  had  six  different  teachers  this  year. 
Can  children  be  trained  into  effective  American 
citizens  under  these  conditions? 

If  children  in  these  extreme  districts  were  to 
remain  isolated,  the  rest  of  the  State  might  com- 
placently sit  by  and  say,  "We'll  educate  the 
children  in  our  district;  we  should  worry  about 
the  others!"  But  the  children  grow  up  and  move 
about  and  vote.  The  safety  of  the  State  demands 
that  every  child  be  properly  educated.  The  only 
means  of  securing  this  result  is  by  a  large  State 
Distributive  Fund — a  fund  collected  from  the 
whole  State  and  distributed  to  the  children  of  the 
whole  State.  When  the  State  fund  is  only  one- 
tenth  of  the  total  educational  income  as  at  present, 
it  can  do  very  little  toward  relieving  the  condition 
of  the  poor  districts.  It  should  be  a  half  or  not 
less  than  a  third  of  the  total  amount  of  school 
money  in  order  to  bring  about  some  degree  of 
equality  of  educational  opportunity.  To  increase 
it  to  $20,000,000  will  make  it  about  one-fourth  of 
the  total  income  of  the  schools.  As  an  emergency 
measure,  $20,000,000  is  of  some  use  in  preventing 
conditions  from  getting  worse  until  a  really  ade- 
quate solution  can  be  found  for  the  bankruptcy  of 
Illinois  schools. 

5— Can  Illinois  Afford  a  $20,000,000 
State  Distributive  Fund  ? 

In  1856  the  Illinois  Legislature  contributed  65% 
of  the  money  necessary  to  run  our  schools.  It 
now  contributes  10%.  The  average  of  all  the 
States  in  the  Union  is  15%.  Eighteen  States  con- 
tribute more  than  20%;  of  these  nine  contribute 
over  40%.  Is  Illinois,  ranking  second  in  wealth 
and  third  in  population,  unable  to  afford  25%? 

The  Federal  Government  was  able  to  collect 
$682,540,000  from  Illinois  in  1920.  This  amount 
of  money  would  provide  a  $20,000,000  State  Dis- 
tributive Fund  for  thirty-four  years — or  until  the 
children  now  in  school  have  put  children  of  their 

18 


own  through  the  public  schools.  Figure  1 1  shows 
the  relation  between  the  money  raised  in  Illinois 
by  the  Federal  Government  and  that  raised  by 
our  own  State  government  in  1920. 


$682.540.000— Direct  taxes  paid  by  Illinois  to  Federal  Govt.  1920. 

■ 

$16.940,000 — State  taxes  collectable  on  1920  valuation. 

Fig.  11 

Figure  12  shows  the  actual  value  of  the  real 
estate  and  improvements  of  Illinois,  contrasted 
with  the  assessed  valuation.  By  making  our 
assessments  cover  a  little  more  of  the  property  in 
the  State,  we  should  be  able  to  raise  the  money 
needed  to  give  our  children  proper  schooling. 


ACTUAL     VM^UA-TION        Q 
REAL     estate:      u.7na 
IMPROVEMENTS 

(bUJH     book     1919  -20  A.  381 ) 

$38,000,000,000 


ASSESSED  \^^JL.TJA.TIOTSr 
rKCLJUDING  -RATT  .T^OA-nq 
$  1^570,000,000 


Fig.  12 

It  is  not  our  function,  however,  to  determine  the 
best  means  of  raising  the  increased  revenue.  The 
wealth  is  in  the  State.  The  children  of  the  State 
have  a  right  to  enough  of  it  to  give  them  adequate 
schools.  At  present  they  are  not  getting  their 
share.  Figure  1,  page  5,  shows  how  much  more 
States  with  far  less  financial  ability  are  doing  for 
their  schools.  We  people  of  Illinois  are  not  quitters. 
When  we  realize  that  we  are  not  giving  our  children 
a  fair  deal,  we  will  use  a  portion  of  our  wealth  to 
support  our  schools. 

The  only  possible  argument  that  can  be  used 
against     increasing     the     distributive     fund     to 

19 


$20,000,000  is  that  this  is  the  year  to  retrench- 
that  costs  and  even  wages  are  coming  down  and 
that  this  will  bring  relief  to  the  schools. 

In  this  connection  it  is  necessarv'  to  realize  that 
during  the  last  six  years  the  combined  relief  of  the 
Hicks  bill  and  an  increase  from  a  84,000,000  dis- 
tributive tund  to  86,000,000  by  the  State  have 
given  the  schools  a  maximum  increase  in  re\enue  of 
S3%,  and  that  during  this  same  time  costs  have 
risen  over  100%.  $14,000,000  added  to  our 
86,000,000  distributive  fund  will  bring  the  total 
maximum  increase  in  revenue  up  to  about  66%  on 
the  1915  basis,  and  in  1915  the  schools  were  run- 
ning behind,  teachers  were  underpaid  and  more 
revenue  was  seriously  needed.  If,  therefore,  the 
cost  of  commodities  in  general  and  of  wages  should 
drop  from  the  present  standard  of  over  100%  higher 
than  1915  to  66%  higher,  even  a  820.000,000  dis- 
tributive fund  would  barely  enable  the  schools  to 
continue  on  the  1915  basis,  without  touching  their 
enormous  debts,  without  providing  funds  for 
Americanization  and  continuation  schools,  without 
paying  trained  teachers  as  much  as  untrained 
workers  and  without  making  the  vitally  important 
progress  that  is  demanded  by  the  reconstruction 
period  upon  which  we  have  entered. 

The  real  question  is  not  "Can  we  afford 
820,000,000  for  our  schools?  Poorly  educated 
children  become  an  ignorant  and  therefore  a 
dangerous  electorate;  foreign  children  not  fully 
Americanized  grow  into  the  irresponsible  kind  of 
agitators.  The  question  becomes:  "Can  we  afford 
NOT  to  give  ample  support  to  our  schools?" 


20 


II— FAIR  PLAY  FOR  UNIT  CON 
TROL  DISTRICTS 

When  the  elementary  schools  of  the  district  are 
under  one  Board  of  Education  and  the  high  school 
is  under  another  board,  each  board  can  levy  a 
separate  tax.  The  Elementary  School  Board  can 
levy  as  high  as  S2.67  upon  referendum  vote  of  the 
people.  The  High  School  Board  can  levy  another 
S2.00.  The  community,  therefore,  is  allowed  to 
tax  itself  as  much  as  S4.67  for  the  support  of  its 
elementary  and  high  schools,  if  it  has  them  under 
two  boards.  But  some  communities  feel  that  they 
can  get  better  results  and  coordination  by  having 
both  elementary  and  high  schools  under  one  Board 
of  Education — that  is,  by  having  a  unit  control 
district.  Springfield,  Peoria,  Decatur,  Chicago 
and  a  number  of  other  cities  have  just  one  Board 
of  Education.  These  places  are  not  allowed  to  tax 
themselves  more  than  82.67  for  the  support  of 
both  elementary  and  high  schools  together.  They 
must  run  their  elementary  and  high  schools  com- 
bined on  the  same  tax  rate  as  other  districts  have 
for  the  support  of  the  elementary  schools  alone. 
This  is  grossly  unfair.  They  should  be  allowed  to 
tax  themselves  as  much  as  those  districts  that 
have  separate  Boards  of  Education  for  their  ele- 
mentary and  high  schools. 


21 


Ill— THE  CHICAGO  SITUATION 

Chicago's  children  are  allowed  a  smaller  propor- 
tion of  the  assessed  valuation  of  their  district  than 
those  of  any  other  part  of  the  State.  Not  only 
does  the  injustice  described  in  Section  II  apply  to 
Chicago,  but  through  the  operation  of  the  Juul 
law  the  schools  of  Chicago  are  allowed  even  less 
than  those  of  other  unit-control  districts. 

While  many  parts  of  the  State  may  tax  them- 
sehes  up  to  S4.67  on  SIOO.OO  for  the  support  of 
their  schools  and  while  unit-control  districts  (ele- 
mentary and  high  schools  under  the  same  Board 
of  Education)  may  tax  themselves  S2.67  for  the 
support  of  their  schools,  Chicago  is  only  allowed 
to  tax  itself  SI. 85. 


S2.00  for 
High  Schools 

$2.67  for 
Elementary  Schools 

$2.67  for  Elementary 
and  High  Schools 

$1.85  for  Elementary 
and  High  Schools 

Dual  Control  Districts     Unit  Control  Districts 
Fig.  13 


Chicago 


Figure  13  shows  the  maximum  amounts  other  dis- 
tricts are  allowed  to  tax  themselves  for  their 
schools,  contrasted  with  Chicago.  Is  there  any 
valid  reason  why  the  State  of  Illinois  should  for- 
bid the  City  of  Chicago  to  tax  itself  as  much  for 
the  support  of  its  schools  as  the  rest  of  the  State? 

This  injustice  has  led  to  big  deficits  in  Chicago, 
the  continued  use  of  antiquated  buildings,  con- 
demned as  unsanitary  or  unfit,  and  to  crowded 
classrooms.  The  average  number  of  children  to  a 
classroom  in  the  fifteen  largest  cities  exclusive  of 
Chicago  is  36.  In  Chicago  it  is  44.  When  the 
average  is  44,  it  means  that  some  rooms  have  as 
many  as  fifty-five  and  sixty  pupils  in  them.  Those 
pupils  are  not  being  fairly  treated.  Chicago 
should  unquestionably  be  allowed  to  tax  herself  as 
much  for  her  children  as  any  other  part  of  the 
State. 

For  a  fuller  treatment  of  the  Chicago  situation, 
send  to  the  Chicago  Board  of  Education  for  its 
Bulletin  No.  20,  January,  1921. 


22 


TV— THE  PLIGHT  OF  THE 
NORMAL  SCHOOLS 

Two  years  ago,  when  the  need  for  more  funds  to 
meet  increased  costs  had  become  extreme,  the 
State  granted  the  charitable  institutions  a  44% 
increase;  it  granted  the  penal  institutions  a  47% 
increase;  it  cut  the  appropriation  to  the  Normal 
Schools  6.6%! 

The  cost  of  living,  according  to  the  United 
States  Department  of  Labor,  has  risen  149%  since 
1913.  Teachers'  salaries  in  general  have  risen  just 
half  as  much — 74%.  Normal  School  instructors' 
salaries  have  only  risen  from  15  to  20%. 

See  Figure  2,  page  6. 

Is  it  strange  that  in  two  years  the  Normal  Schools 
have  lost  123  out  of  251  instructors? 

Yet  we  depend  on  the  Normal  Schools  to  train 
the  teachers  who  are  to  educate  our  children.  A 
deterioration  of  their  faculties  means  a  decay  of 
our  public  schools  from  the  very  roots. 

The  Normal  Schools  are  asking  for  a  50%  salary 
increase  for  all  their  instructors.  This  will  barely 
bring  their  total  increase  since  1913  up  to  the 
increase  in  teachers'  salaries  in  general — and 
everyone  knows  how  seriously  the  average  teacher 
is  underpaid.  The  Normal  Schools  have  not  asked 
that  the  instructors  receive  as  great  an  increase  as 
common  labor,  whose  wages  have  doubled;  nor  as 
much  as  factory  workers  whose  wages  have  risen 
from  100  to  150%.  They  have  asked  for  a  50% 
increase.  Even  with  the  falling  wage  scales,  it  will 
be  some  time  before  unskilled  labor  and  factory 
hands  drop  to  the  level  to  which  the  Normal 
Schools  are  aspiring. 

Those  who  are  to  train  the  future  teachers  of  the 
State  should  be  the  most  capable  men  and  women 
obtainable.  Yet  almost  any  Normal  School  in  a 
neighboring  State  can  take  away  our  best  Normal 
School  instructors.  The  salaries  of  the  best  paid 
heads  of  departments  at  the  Illinois  State  Normal 
University  average  S2787.  In  Wisconsin  the  maxi- 
mum is  S4000;  in  Missouri,  S3500  and  S3660;  at 
Terre  Haute  and  Cedar  Falls,  S3960;  at  Kent  and 
Oxford,  Ohio,  S3600;  at  Albany  Teachers  College, 
S4500;  at  Ypsilanti  and  Kalamazoo,  Michigan, 
S5000.  And  most  of  these  Normal  Schools  are 
asking  increases.  A  50%  salary  increase  to  our 
Normal  School  instructors  will  barely  put  them  on 
a  par  with  the  Normal  Schools  of  all  the  states 
that  surround  us.  Disregarding  the  question  of 
fairness  to  the  people  who  train  teachers  for  our  chil- 
dren, can  we  get  and  keep  the  "right  kind  of  Normal 
School  instructors  under  these  circumstances? 

23 


When  these  facts  are  brought  home  to  the  minds 
and  hearts  of  the  people  of  our  State,  lUinois  will 
rise  to  the  emergency,  as  she  has  always  risen  to 
emergencies,  and  bring  her  system  of  public  educa- 
tion from  twenty-fourth  place  up  toward  the  top. 

Can  we  as  a  State  afford  to  be  penurious  with 
our  teacher  training  institutions,  when  on  them 
depends  the  type  of  education  our  children  receive? 

For  a  fuller  statement  of  the  Normal  School 
situation,  send  to  Hon.  Francis  G.  Blair,  Superin- 
tendent of  Public  Instruction,  Springfield,  for  a 
pamphlet  entitled  "The  Normal  School  Crisis." 


V— THE  JOINT  LEGISLATIVE 
PROGRAM 

of  the  State  School  Board  Association,  City 

Superintendents'  Association  and  State 

Teachers'  Association 

1— A  $20,000,000  State  Distributive  Fund. 

2 — Increased  taxing  power  to  unit-control  school 
districts  to  equal  that  of  other  school  districts. 

3 — Permission  for  Chicago  to  have  as  high  a  tax 
rate  to  support  its  schools  as  the  rest  of  the  dis- 
tricts in  the  state. 

4 — A  50%  salary  increase  for  Normal  School 
instructors  and  adequate  building  and  agricultural 
funds  for  the  Normal  Schools. 

5 — Adequate  support  for  the  University  of 
Illinois.  A  treatment  of  the  University  needs  is 
not  included  in  this  pamphlet  because  they  have 
issued  their  own  publicity  material.  But  all  public 
educational  organizations  are  solidly  back  of  the 
University  in  its  request  for  a  $10,000,000  appro- 
priation. 

6 — Validation  of  a  number  of  community  high 
school  districts,  made  invalid  through  court  deci- 
sions because  they  included  districts  organized 
under  special  charters. 

7 — Minor  amendments  to  pension  laws  allowing 
retired  teachers  to  live  in  other  states  than  Illinois, 
and  to  safeguard  rights  of  contributors. 

8 — Provision  for  distributing  the  proceedings  of 
the  I.  T.  S.  A.,  as  well  as  for  printing  and  binding. 

9 — Permission  for  kindergartens  in  districts 
financially  able  to  support  them. 

The  legislative  committee  of  the  State  Teachers' 
Association  is  also  backing  the  program  of  the 
County  Superintendents. 

24 


The  outstanding  facts  of  this  report  are : 

1 — Our  schools  are  in  a  desperate  financial 
condition.  Emergency  legislation 
granting  at  leasta  $20,000,000  distributive 
fund  is  imperative. 

2 — Unit-control  school  districts  and 
Chicago  are  discriminated  against  in  our 
State  laws.  They  must  be  given  a  right 
to  raise  as  much  money  for  their 
schools,  locally,  as  the  other  districts 
of  the  State. 

3 — The  Normal  Schools  and  University  are 
likewise  failing  to  perform  their  proper 
and  vitally  important  functions  as  a 
result  of  inadequate  support. 


Any  desired  number  of  additional  copies 
of  this  booklet  may  be  obtained  by  writing 
to    C.    W.    Washburne,    Winnetka,    Illinois. 

They  will  be  sent  free,  if  requested,  but 
individuals  and  organizations  ordering  con- 
siderable numbers  may  help  defray  the 
expenses  of  publication  by  paying  for  them 
at  5c  apiece,  if  they  so  desire. 

Lantern  slides  of  the  illustrations  of  the 
booklet,  and  others,  will  be  loaned  to  any 
organization  on  request.  Speakers  will  be 
furnished  when  necessary,  the  only  charge 
being  their  traveling  expenses. 

Address  all  communications  concerning 
publicity  to: 

C.   W.   Washburne, 

Winnetka, 

Illinois. 


UNIVERSmr  OF  ILLINOIS-URBANA 


3  0112  061866940 


